[Federal Register Volume 67, Number 2 (Thursday, January 3, 2002)]
[Proposed Rules]
[Pages 282-296]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-142]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 697

[Docket No. 010918229-1229-01; I.D. 022301A]
RIN 0648-AP15


American Lobster Fishery

AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and 
Atmospheric Administration (NOAA), Commerce.

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS proposes regulations to modify the management measures 
applicable to the American lobster fishery. This action responds to the 
following recommendations made by the Atlantic States Marine Fisheries 
Commission (ASMFC): To control fishing effort as determined by 
historical participation in the American lobster trap fisheries 
conducted in the offshore Lobster Conservation Management Area (LCMA) 3 
(Area 3) and in the nearshore LCMAs of the Exclusive Economic Zone 
(EEZ) from New York through North Carolina (Areas 4 and 5); to 
implement a mechanism for conservation equivalency and associated trap 
limits for owners of vessels in possession of a Federal lobster permit 
(permit holders) fishing in New Hampshire state waters; and to clarify 
lobster management area boundaries in Massachusetts waters. NMFS 
includes in this proposed rule a technical amendment to the regulations 
clarifying that Federal lobster permit holders must attach federally 
approved lobster trap tags to all lobster traps fished in any portion 
of any management area (whether in state or Federal waters). This 
requirement is not new, but was not previously clearly specified in the 
regulatory text, and this announcement is intended to make the 
regulations easier to understand.

DATES: Comments must be received no later than 5 p.m., eastern standard 
time, on February 19, 2002.

ADDRESSES: Comments on the proposed rule should be sent to Harry Mears, 
Director, State, Federal and Constituent Programs Office, NMFS, One 
Blackburn Drive, Gloucester, MA 01930. Comments will not be accepted if 
submitted via e-mail or the Internet. Comments regarding the 
collection-of-information requirements contained in the proposed rule 
should be sent to Harry Mears at the above address, and the Office of 
Information and Regulatory

[[Page 283]]

Affairs, Office of Management and Budget, Washington, DC 20503 (ATTN: 
NOAA Desk Officer). Copies of a Draft Supplemental Environmental Impact 
Statement/Regulatory Impact Review/Initial Regulatory Flexibility 
Analysis (DSEIS/RIR/IRFA) can be obtained from Harry Mears at the above 
address.

FOR FURTHER INFORMATION CONTACT: Robert Ross, NMFS, Northeast Region, 
978-281-9234.

SUPPLEMENTARY INFORMATION:

Proposed Action

    NMFS is proposing regulations to modify Federal lobster 
conservation management measures in the EEZ under the authority of 
section 803(b) of the Atlantic Coastal Fisheries Cooperative Management 
Act (ACFCMA), 16 U.S.C. 5101 et seq., which states that, in the absence 
of an approved and implemented Fishery Management Plan under the 
Magnuson-Stevens Fishery Conservation and Management Act (Magnuson-
Stevens Act) (16 U.S.C. 1801 et seq.) and after consultation with the 
appropriate Fishery Management Council(s), the Secretary of Commerce 
may implement regulations to govern fishing in the EEZ, i.e., from 3 to 
200 nm offshore. These regulations must be (1) compatible with the 
effective implementation of an Interstate Fishery Management Plan 
(ISFMP) developed by the ASMFC and (2) consistent with the national 
standards set forth in section 301 of the Magnuson-Stevens Act.
    The lobster management program uses a fishing effort limitation 
strategy, among other measures, to control lobster fishing mortality. 
Fishing effort is currently limited by restricting the access of new 
vessels to the fishery and by limiting the number and size of traps 
that may be fished by each vessel. This proposed rule, issued as part 
of a Federal/state cooperative management effort, would implement a 
historical participation management regime to control lobster fishing 
effort and to preserve the socio-economic character of the associated 
lobster fisheries in Areas 3, 4, and 5. It would also establish a 
process for the evaluation of recommendations from ASMFC for Federal 
lobster regulations implementing ASMFC-approved conservation-
equivalency measures in state coastal waters. In this regard, the 
proposed action would respond to an ASMFC recommendation to modify trap 
limit restrictions for Federal lobster permit holders fishing in EEZ 
Nearshore Management Area 1 who also possess a New Hampshire state 
lobster license. Finally, the proposed action would modify boundaries 
of lobster management areas in Massachusetts state waters for clarity 
and consistency with past fishing practices.

Effort Control in Lobster Conservation Management Areas 3, 4, and 5

    In 1994, NMFS implemented a 5-year moratorium on new entrants into 
the EEZ lobster fishery via a limited access permit system. In December 
1999, that moratorium was extended indefinitely under Federal 
regulations found at 50 CFR part 697 (64 FR 68228). Based upon its 
approval of selected management measures proposed by the Areas 3, 4, 
and 5 Lobster Conservation Management Teams, the ASMFC recommended that 
access to, and levels of effort in, the lobster trap fishery in EEZ 
Offshore Area 3 and Nearshore EEZ waters of Areas 4 and 5 be based on 
historical participation. The ASMFC recommendations for qualification 
based on historical participation addressed qualification criteria, 
allocation of fishing effort, and limitations on vessel upgrades. 
Qualification criteria are different among the areas and include 
demonstration of active involvement in the fishery through provision of 
certain documents. The ASMFC plan for Area 3 proposes that potential 
participants must meet or exceed both a landing and a fishery intensity 
threshold in order to qualify, whereas the plans for Areas 4 and 5 
would only require fishermen to have held a lobster trap permit during 
the qualification period (see details provided in subsequent text).
    The DSEIS/RIR/IRFA for this action, announced by a notice of 
availability published on November 24, 2000 (65 FR 70567), used data 
available to NMFS for the 2000-2001 fishing year from May 2000 through 
August 2000, on the number of owners of vessels that elected to harvest 
American lobsters in specific LCMAs. Some owners of vessels in 
possession of a Federal lobster permit may have elected LCMAs after 
August 2000, or may have elected LCMAs with no intention to fish with 
lobster traps in one or more of the elected LCMAs. Therefore, the 
number of vessels electing to fish in LCMAs 3, 4, or 5 may be higher 
than the number identified in the DSEIS/RIR/IRFA for this action, and 
the number of vessels that do not qualify for future participation in 
the LCMA 3, 4, and/or 5 fisheries may be higher than the number 
identified in this proposed rule and in the DSEIS/RIR/IRFA.

Area 3 Fishing Effort Control Program

Area Coordinates

    EEZ Offshore Management Area 3 is defined at 50 CFR 697.18(d). A 
copy of a map showing the American lobster EEZ management areas is 
available upon request from the Director of the State, Federal and 
Constituent Programs Office, see ADDRESSES.

Qualification Period and Establishment of a Federal Control Date

    NMFS proposes to limit the number of traps fished in Area 3 based 
on proof of historical participation in the Area 3 fishery and the 
number of traps fished by a vessel during a qualifying period from 
March 25, 1991 (date recommended by the ASMFC) through September 1, 
1999. NMFS is not proposing to use the ASMFC's recommended ending date 
of November 1, 1997, for this qualification period because of NMFS' 
policy to provide advance notice to the public of qualification dates. 
On September 1, 1999, NMFS published an advance notice of proposed 
rulemaking (ANPR) in the Federal Register (64 FR 47756), to give notice 
that NMFS was considering September 1, 1999, the publication date of 
the ANPR, as a possible control date, or cut-off date, to be used to 
determine eligibility for future access to the Federal lobster trap 
fishery. This proposed qualification period is similar to the 
recommendations pertaining to historical participation in the EEZ for 
Areas 3, 4, and 5 approved by the ASMFC under the ISFMP on August 1, 
1999.
    NMFS is proposing to use the ASMFC's recommended criterion that 
would require fishermen to demonstrate that at least 200 lobster traps 
were set, allowed to soak, hauled back, and re-set in Area 3 during 2 
consecutive calendar months within the qualification period. The use of 
a 2-consecutive calendar month period would maintain consistency with 
the ASMFC's ISFMP, and avoid the potential for conflicting state and 
Federal regulations when implementing this qualification criterion. In 
addition, the NMFS dealer landing and vessel trip report data, which 
would likely be used for qualification purposes, is based on calendar 
month time periods. Due to the calendar month configuration of the NMFS 
databases, the use of an alternative time frame, such as 60-consecutive 
days, would be more prone to error.
    NMFS is proposing to incorporate the ASMFC's recommendation to 
qualify vessels based on a calendar year time

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period, rather than some other time period, such as a Federal lobster 
fishing year (May 1 through April 30). The use of calendar years would 
be consistent with recommendations provided by the ASMFC. In addition, 
documents provided by fishermen to demonstrate historic participation, 
such as tax returns, are commonly based on a calendar year rather than 
a fishing year. Also, there is often less lobster fishing effort in the 
winter months due to weather conditions and the availability of the 
resource. Therefore, it is less likely that a 2-consecutive month 
period used to qualify a vessel would overlap the December to January 
time period.

Qualification Criteria

    In order to qualify to fish for lobster with traps in Area 3, 
Federal lobster permit holders would need to meet all of the following 
criteria:
    1. Possession of a current Federal limited access lobster permit.
    2. Provision of documentation to demonstrate that at least 200 
lobster traps were set, allowed to soak, hauled back, and re-set in 
Area 3 during a 2-consecutive calendar month period in any calendar 
year during the qualification period, from March 25, 1991, through 
September 1, 1999. If 1991 is chosen by the permit holder as the 
qualifying year, documentation should reflect relevant activity 
occurring only during the part of the 1991 calendar year that falls 
within the qualification period (March 25, 1991, through December 31, 
1991). If the permit holder chooses 1999 as the qualifying year, the 
documentation submitted in response to the qualification criteria must 
reflect relevant fishing activity during the period of the 1999 
calendar year that falls within the qualifying period (January 1, 1999, 
through September 1, 1999). If any other calendar year within the 
qualification period is chosen, documentation submitted with respect to 
the qualification criteria may reflect relevant activity during any 
portion of that calendar year. Documentation may include copies of 
vessel logbooks; permit applications; Federal Fishing Vessel Trip 
Reports (NOAA Form 88-30); official state reporting documentation 
showing the number of traps fished, including, but not limited to, 
state report cards, license application forms, and catch reports; an 
approved Federal Fishing Vessel and Gear Damage Compensation Fund 
Report (NOAA Form 88-176); and/or other forms of credible 
documentation.
    3. Provision of sales receipts or other documents pertaining to the 
sale of lobsters and indicating the landing of at least 25,000 lb 
(11,340 kg) of lobster from any location during the year used as the 
qualifying year from March 25, 1991, through September 1, 1999.

Trap Allocations

    Federal permit holders intending to fish for lobster with traps in 
Area 3 would also have to provide a signed affidavit to NMFS certifying 
the maximum number of individual traps the permit holder set, allowed 
to soak, hauled back, and re-set in Area 3 at any one time during the 
qualifying year. This affidavit must be accompanied by the same or 
similar type of documentation used to demonstrate compliance with 
qualification criterion number 2. Documentation submitted to support 
the affidavit may reflect activity during any point within the 
qualifying year and does not necessarily need to represent activity 
conducted during the 2-consecutive month period used to substantiate 
qualification criterion number 2.
    The use of Federal Fishing Vessel Trip Reports to document 
historical fishing effort (fishing location and number of traps fished) 
in the lobster fishery would be possible for some, but not all, Federal 
lobster permit holders (e.g., those holding other Federal species 
permits that, unlike lobster permits, require mandatory reporting). A 
recent review by NMFS indicates that of 3,153 Federal lobster permit 
holders in 1997, 1,984 (approximately 62 percent) held Federal permits 
for other fisheries requiring mandatory reporting. The utility of these 
reports for documenting lobster fishing effort would be further 
restricted to those permit holders who accurately noted, on the 
reports, the number of individual lobster traps fished on an area-by-
area basis. Similarly, an informal review of the utility of official 
state reports for determination of lobster trapping effort concludes 
that such documents may be relevant only to Connecticut and 
Massachusetts residents (approximately 34 percent of Federal lobster 
permit holders).
    Use of Federal Fishing Vessel and Gear Damage Compensation Reports 
will be limited to an unknown number of Federal lobster permit holders 
who have submitted compensation claims for gear loss under the 
provisions of the Fishermen's Protective Act (22 U.S.C. 1980 et seq.). 
Vessel logbooks, receipts from the sale of lobsters or the purchase of 
lobster traps, observer trip reports, and income tax forms provide 
other examples of documentation that could be used to help substantiate 
previous levels of lobster fishing effort (i.e., number of traps). Due 
to the varying degrees to which each of these forms of documentation 
may be either available or relevant for purposes of certifying 
historical trapping effort on a case-by-case basis, NMFS proposes that 
the discretion should be left to the individual permit holder to decide 
which documents to use. Accordingly, NMFS does not agree with the 
ASMFC's recommendations that a priority ranking should be assigned to 
the use of any one form of documentation over another.
    Some fishermen would likely need a combination of documents to 
certify the number of traps fished historically. Although NMFS 
recognizes the importance of this information as a basis to certify 
historical participation in the Area 3 fishery, it is sensitive to the 
fact that no mandatory reporting requirements in the lobster fishery 
exist. NMFS believes, at this point, that the use of an affidavit, with 
the provision of supporting documentation to NMFS, would accommodate 
the necessary procedures to implement lobster trap fishing effort 
controls on the basis of historical participation.
    The ASMFC has also recommended that NMFS contract with an 
independent outside entity to determine and recommend trap allocations 
and publish a notice that specifies initial trap allocations for each 
lobster permit holder. NMFS disagrees and believes that an in-house 
review would be the most efficient and equitable means of approving 
trap allocations. In addition, the release of personal documents and 
records to an outside review body raises privacy issues. NMFS also 
believes that the issuance of a public notice that would specify 
individual trap allocations for each Federal permit holder, as 
recommended by the ASMFC, also raises privacy issues and serves no 
constructive purpose.

Trap Reduction Plan

    Once qualified, a lobster permit holder would be allocated a 
certain number of lobster traps, based on the affidavit and supporting 
documentation provided, but no Federal lobster permit holder would be 
given an initial lobster trap allocation of more than 2,656 lobster 
traps. (This maximum trap allocation was recommended by ASMFC as a 
result of Addendum II to Amendment 3 of the ISFMP.) Each trap 
allocation of more than 1,200 traps would be reduced annually on a 
sliding scale basis over 4 years. Trap reductions would not go below a 
baseline of 1,200 traps. Each initial allocation in Area 3 of fewer 
than 1,200 traps would remain at that allocation. The reduction 
schedule recommended by the ASMFC is shown in Table 1.

[[Page 285]]



                                     Table 1. Area 3 Trap Reduction Schedule
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                                                                       Trap Allocation by Fishing Year*
                                                             ---------------------------------------------------
                                                                                                       2005 and
   Number of Traps Approved by the Regional Administrator                                               beyond
                                                                  2002         2003         2004        until
                                                                                                       changed
----------------------------------------------------------------------------------------------------------------
1200-1299                                                            1200         1200         1200         1200
1300-1399                                                            1200         1200         1200         1200
1400-1499                                                            1290         1251         1213         1200
1500-1599                                                            1388         1337         1297         1276
1600-1699                                                            1467         1423         1380         1352
1700-1799                                                            1548         1498         1452         1417
1800-1899                                                            1628         1573         1523         1482
1900-1999                                                            1705         1644         1589         1549
2000-2099                                                            1782         1715         1654         1616
2100-2199                                                            1856         1782         1715         1674
2200-2299                                                            1930         1849         1776         1732
2300-2399                                                            2003         1905         1836         1789
2400-2499                                                            2076         1981         1896         1845
2500-2599                                                            2197         2034         1952         1897
2600-2699                                                            2218         2107         2008         1949
2700-2799                                                            2288         2169         2063         2000
2800-2899                                                            2357         2230         2117         2050
2900-2999                                                            2425         2291         2171         2100
3000-3099                                                            2493         2351         2225         2150
3100-3199                                                            2575         2422         2288         2209
3200                                                                 2656         2493         2351         2267
----------------------------------------------------------------------------------------------------------------
* Trap allocations below 1,200 will not be subject to further reductions.

    This proposed rule would require that any Federal lobster permit 
holder applying for an Area 3 trap allocation who also applies for a 
trap allocation in Area 4, Area 5, or in all three of those areas use 
the same qualifying year for all areas and avoid a combined trap 
allocation greater than the number of traps that the permit holder 
fished with any one vessel in any one year. In addition, the current 
requirement that Federal permit holders who elect to fish in multiple 
areas must abide by the most restrictive regulations, including trap 
allocations, in any one elected area at any one time, would remain in 
effect.

Vessel Upgrades

    NMFS is not proposing to adopt the ASMFC's recommendation to limit 
vessel upgrades for Federal permit holders receiving an Area 3 trap 
allocation. This limitation, if implemented, would preclude federally 
permitted vessels in the Area 3 lobster fishery that measure over 50 ft 
(15.24 m) in length, or upgrading to over 50 ft (15.24 m) in length, 
from upgrades or replacement that would result in more than a 10-
percent increase in length overall, or a 20-percent increase in shaft 
horsepower, for 2 years.
    NMFS does not concur with this recommendation. A prohibition on an 
increase in vessel length or an increase in horsepower for a 2-year 
period would require existing permit holders to substantiate existing 
baseline vessel characteristics. Lobster trap vessels are generally 
small, with an average length of 39 ft (11.9 m). Many such vessels are 
not U.S. Coast Guard documented, and, therefore, information on length 
and horsepower may not be available to NMFS. The implementation of 
lobster vessel upgrade criteria may accordingly require a marine survey 
to establish legal vessel specifications, adding a financial burden on 
vessel owners. The potential cost to hire a marine surveyor or naval 
architect to verify existing baseline vessel characteristics can range 
from $150 to $600, with associated costs increasing with vessel size, 
and would result in added delays for vessel replacement and transfers, 
if implemented. NMFS' review of requests for transfers would take more 
time, because NMFS would need to verify whether the specific vessel 
with a limited access American lobster permit would qualify to fish in 
Area 3 and, therefore, would be restricted by the upgrade provision.
    NMFS is concerned that implementation of the ASMFC's recommended, 
temporary upgrade restrictions would be unnecessarily burdensome for 
fishermen and NMFS and would afford no obvious conservation benefits to 
the lobster resource, unlike the permanent restrictions on vessel and 
horsepower upgrades in the scallop and groundfish fisheries. In 
addition, an unknown number of vessels that would qualify for 
historical participation in Area 3 as specified in this proposed rule 
may currently hold a Federal fisheries permit in another fishery that 
permanently restricts vessel and horsepower upgrades. The 
implementation of trap limits, either fixed or based on a historical 
level of participation, has the potential to effectively limit fishing 
effort in the offshore lobster fishery without an additional 
requirement for vessel upgrade restrictions.

Areas 4 and 5 Fishing Effort Control Program

Area Coordinates

    EEZ Nearshore Management Area 4 and EEZ Nearshore Management Area 5 
are defined in 50 CFR 697.18(e) and (f), respectively. A copy of a map 
showing the American lobster EEZ management areas is available upon 
request to the Director, State, Federal and Constituent Programs 
Office, see ADDRESSES.

Qualification Period and Establishment of a Federal Control Date

    The eligibility of Federal lobster permit holders to fish with 
traps in the Areas 4 and/or 5 fishery would be based on proof of 
historical participation and numbers of traps fished by a vessel during 
a qualifying period from March 25, 1991, through September 1, 1999. 
NMFS is not proposing to adopt the ASMFC-recommended ending date 
(control date) of September 15, 1998, for this qualification period 
because NMFS previously notified the public that it may use September 
1, 1999, as the control date. See Area 3 discussion for

[[Page 286]]

associated rationale. NMFS is proposing to use the ASMFC's recommended 
2-consecutive calendar month period criterion within the qualification 
period to demonstrate that at least 200 lobster traps were set, allowed 
to soak, hauled back, and re-set in Areas 4 or 5. See Area 3 discussion 
for associated rationale. NMFS is proposing to incorporate the ASMFC's 
recommendation to qualify vessels based on a calendar year time period, 
rather than some other time period such as a Federal lobster fishing 
year (May 1 through April 30). See Area 3 discussion for associated 
rationale.

Qualification Criteria for EEZ Nearshore Management Area 4

    This proposed rule would require Federal lobster permit holders to 
meet the following criteria in order to fish for lobster with traps in 
Federal waters of Area 4:
    1. Possession of a current Federal limited access lobster permit.
    2. Provision of documentation to demonstrate that at least 200 
lobster traps were set, allowed to soak, hauled back, and re-set in 
Area 4 during a 2-consecutive calendar month period in any calendar 
year during the qualification period from March 25, 1991, through 
September 1, 1999. If 1991 is chosen by the permit holder as the 
qualifying year, documentation should reflect relevant activity 
occurring only during the part of the 1991 calendar year that falls 
within the qualification period (March 25, 1991, through December 31, 
1991). If the permit holder chooses 1999 as the qualifying year, the 
documentation submitted in response to the qualification criteria must 
reflect relevant fishing activity during the period of the 1999 
calendar year that falls within the qualifying period (January 1, 1999, 
through September 1, 1999). If any other calendar year within the 
qualification period is chosen, documentation submitted with respect to 
the qualification criteria may reflect relevant activity during any 
portion of that calendar year.
    Documentation may include copies of vessel logbooks; permit 
applications; Federal Fishing Vessel Trip Reports (NOAA Form 88-30); 
official state reporting documentation showing the number of traps 
fished, including, but not limited to, state report cards, license 
application forms, and catch reports; an approved Federal Fishing 
Vessel and Gear Damage Compensation Fund Report (NOAA Form 88-176); 
and/or other forms of credible documentation.

Qualification Criteria for EEZ Nearshore Management Area 5

    This proposed rule would require Federal lobster permit holders to 
meet the following criteria in order to fish for lobster with traps in 
Federal waters of Area 5:
    1. Possession of a current Federal limited access lobster permit.
     2. Provision of documentation to demonstrate that at least 200 
lobster traps were set, allowed to soak, hauled back, and re-set in 
Area 5 during a 2-consecutive calendar month period in any calendar 
year during the qualification period from March 25, 1991, through 
September 1, 1999. If 1991 is chosen by the permit holder as the 
qualifying year, documentation should reflect relevant activity 
occurring only during the part of the 1991 calendar year that falls 
within the qualification period (March 25, 1991, through December 31, 
1991). If the permit holder chooses 1999 as the qualifying year, the 
documentation submitted in response to the qualification criteria must 
reflect relevant fishing activity during the period of the 1999 
calendar year that falls within the qualifying period (January 1, 1999, 
through September 1, 1999). If any other calendar year within the 
qualification period is chosen as the qualifying year, documentation 
submitted with respect to the qualification criteria may reflect 
relevant activity during any portion of that calendar year. 
Documentation may include copies of vessel logbooks; permit 
applications; Federal Fishing Vessel Trip Reports (NOAA Form 88-30); 
official state reporting documentation showing the number of traps 
fished, including, but not limited to, state report cards, license 
application forms, and catch reports; an approved Federal Fishing 
Vessel and Gear Damage Compensation Fund Report (NOAA Form 88-176); 
and/or other forms of credible documentation indicating that at least 
200 lobster traps were set, allowed to soak, hauled back, and re-set in 
Area 5 during a 2-consecutive calendar month period in any calendar 
year during the qualification period.

Rationale for Provision of Documentation in Support of a History of 
Lobster Trap Fishing in Areas 4 or 5

    Although not recommended by the ASMFC, NMFS believes that requiring 
documentation to substantiate that at least 200 lobster traps were set, 
allowed to soak, hauled back, and re-set in either or both Areas 4 or 
5, during a 2-consecutive calendar month period in any calendar year 
during the qualification period is necessary to effectively establish 
historical participation, consistent with the qualification criteria of 
the Area 3 plan. NMFS has no conclusive data for determining historical 
numbers of traps fished in Areas 4 and 5. However, on the basis of the 
best information available to NMFS and associated comments received 
with respect to the DSEIS, NMFS believes that the setting, soaking, 
hauling back, and re-setting of at least 200 lobster traps in Areas 4 
or 5 during a 2-consecutive calendar month period in any calendar year 
during the qualification period represents a reasonable indicator of a 
fisherman's socio-economic reliance on the lobster fishery.

Trap Allocations for Areas 4 and 5

    Similar to the proposed action for Area 3, this proposed rule would 
require Federal permit holders qualifying to fish for lobster with 
traps in Areas 4 and/or 5 to provide a signed affidavit certifying the 
maximum number of individual traps the permit holder set, allowed to 
soak, hauled back, and re-set in Areas 4 and/or 5 at any one time 
during the qualifying year. The affidavit would be submitted to the 
Regional Administrator for use in determining the permitted vessel's 
lobster trap allocation for Areas 4 and/or 5. This proposed rule would 
require that such certification be based upon the same or similar type 
of documentation used to fulfill the qualification criterion number 2, 
and that the affidavit be accompanied by credible, written documents 
that corroborate the number of individual lobster traps claimed in the 
affidavit. Documentation submitted to support the affidavit may reflect 
activity during any point within the qualifying year and does not 
necessarily need to represent activity conducted during the 2-
consecutive month period used to substantiate trap fishing activity in 
qualification criterion number 2.
    ASMFC recommendations for the Areas 4 and 5 fisheries, unlike those 
for the Area 3 fishery, do not contain either trap limits or trap 
reduction schedules. Although not recommended by the ASMFC, NMFS is 
proposing a trap limit not to exceed 1,440 lobster traps per vessel, on 
the basis of public comment received on the DSEIS, and the conservation 
benefit to the resource. NMFS believes the removal of existing trap 
limits in Areas 4 and 5 (800 lobster traps per vessel under current 
Federal Regulations), without implementation of an alternative trap 
limit, would likely result in excessive lobster fishing mortality. 
Implementation of a

[[Page 287]]

maximum trap limit in Areas 4 and 5 of 1,440 lobster traps per vessel, 
in combination with the proposed qualification criteria for 
participation in the Areas 4 and 5 trap fishery, may preclude excessive 
trap fishing effort and corresponding levels of lobster fishing 
mortality.
    The implementation of a trap limit is also consistent with the 
proposed measure for controlling lobster trap fishing effort on the 
basis of historical participation proposed for Area 3. A trap limit not 
to exceed 1,440 lobster traps was initially analyzed as a non-preferred 
alternative in the DSEIS. In accordance with ASMFC recommendations, 
NMFS is not proposing a trap reduction requirement once the initial 
trap allocations have been determined for qualified participants in the 
Areas 4 and 5 trap fisheries.
    This proposed rule would require any Federal lobster permit holder 
applying for access to more than one of the 3 areas (Areas 3, 4, or 5) 
to use the same qualifying year for all areas in order to avoid a 
combined allocation greater than the number of traps that the permit 
holder ever fished with any one vessel at any one time during any one 
year. In addition, the current requirement that Federal permit holders 
who elect to fish in multiple areas must abide at all times by the most 
restrictive regulations, including trap allocations, in any one elected 
area regardless of the area being fished, would remain in effect.

Appeals Process

    Any applicant denied a limited access American lobster permit for 
Areas 3, 4, and/or 5 could appeal to the Regional Administrator within 
30 days of the date indicated on the notice of denial. Any such appeal 
would need to be in writing. The only ground for appeal would be that 
the Regional Administrator erred in concluding that the vessel did not 
meet the criteria specified in this proposed rule. The appeal would 
need to set forth the basis for the applicant's belief that the 
Regional Administrator's decision was made in error.
    The Regional Administrator would appoint a designee to make the 
initial decision on the appeal. Within 30 days of the date on the 
notice of the initial decision on the appeal, the appellant could 
request in writing a review by the Regional Administrator of the 
initial decision. The appellant could present his/her objections to the 
initial decision on the appeal at a hearing before an officer appointed 
by the Regional Administrator. The hearing officer would make findings 
of fact and a recommendation to the Regional Administrator. Upon 
receiving the findings and the recommendation, the Regional 
Administrator would make a decision on the appeal, which would be the 
final decision of the Department of Commerce. If the appellant did not 
request a review within 30 days of the date on the notice of the 
initial decision on the appeal, the initial decision would be the final 
administrative action of the Department of Commerce.
    A vessel denied a limited access American lobster permit for Areas 
3, 4, and/or 5 could fish in Areas 3, 4, and/or 5, provided that the 
denial had been appealed, the appeal was pending, and the vessel had on 
board a letter from the Regional Administrator authorizing the vessel 
to fish in Areas 3, 4, and/or 5. The Regional Administrator would issue 
such a letter for the pendency of any appeal. This letter of 
authorization would be the final administrative action of the 
Department of Commerce pending a final decision on the appeal. While 
the appeal was pending, the vessel could fish up to 800 lobster traps, 
unless the vessel's Federal lobster permit had designated only Area 3 
for lobster trap fishing, whereby, the vessel could fish up to 1,800 
lobster traps in Area 3 only. If the appeal was finally denied, the 
Regional Administrator would send a notice of final denial to the 
vessel owner; the authorizing letter would become invalid 5 days after 
receipt of the notice of denial or 15 days after the date it was sent, 
whichever occurred first.

Clarification of Procedures for Consideration of Conservation 
Equivalency Measures as They Apply to Federal Lobster Permit 
Holders

    The ISFMPs developed by ASMFC allow states to adopt management 
measures that differ from the specific management measures in the 
ISFMPs as long as the states' alternative measures achieve the same 
quantified level of conservation for the resource under management. 
Such alternative management measures are referred to as ``conservation 
equivalent measures.'' For example, any state may request a change to 
regulations in waters under its jurisdiction pertaining to the default 
trap limits specified in the ISFMP. Such requests are reviewed by 
ASMFC's Lobster Technical Committee, which provides its evaluation of 
the biological merit of such proposals to ASMFC's Lobster Board for 
subsequent policy review and approval. Upon approval of such measures, 
the ASMFC, under the provisions of the ACFCMA, may decide to recommend 
modifications to Federal lobster regulations, as may be deemed 
necessary, to complement a state's conservation equivalent measures. 
This proposed rule would clarify a procedure by which NMFS would 
consider such recommended modifications to Federal lobster regulations 
as they may pertain to the activities of Federal lobster permit holders 
from the affected state(s).
    Specifically, under 50 CFR 697.25, NMFS would consider any future 
recommendations for modifications to Federal regulations based on 
conservation equivalency that are formally submitted to the agency in 
writing by the ASMFC and that contain the following supporting 
information: (1) a description of how Federal regulations would be 
modified; (2) an explanation of how the recommended measure(s) would 
achieve a level of conservation benefits for the resource equivalent to 
the applicable Federal regulations; (3) an explanation of how Federal 
implementation of the conservation equivalent measure(s) would achieve 
ISFMP objectives, be consistent with the Magnuson-Stevens Act national 
standards, and be compatible with the effective implementation of the 
ISFMP; and (4) a detailed analysis of the biological, economic, and 
social impacts of the recommended conservation equivalent measure(s). 
After considering a recommendation for conservation equivalent measures 
and the necessary supporting information, NMFS may issue a proposed 
rule to implement the conservation equivalent measures. After 
considering public comment, NMFS may issue a final rule to implement 
such measures.
    In the DSEIS prepared for this action, NMFS expressed concern that 
recommendations from the ASMFC for Federal implementation of 
conservation equivalent measures may unduly burden the agency, given 
that there are 15 member states in the ASMFC and that each state may 
seek Federal implementation of the conservation equivalent of several 
different types of measures under the ISFMP. NMFS believes that 
receiving the supporting information and analyses along with a 
recommendation for Federal implementation of conservation equivalent 
measures is necessary to enable NMFS to respond to recommendations for 
Federal rulemaking in a more timely and efficient manner. This 
cooperative approach to the implementation of conservation equivalent 
measures would benefit the states, fishermen, and enforcement of 
fishery regulations by minimizing the time lag between state and 
Federal implementation of approved conservation equivalent

[[Page 288]]

measures and by reducing the time period during which state-only permit 
holders and Federal permit holders from the same state may be subject 
to different requirements.

Modification of Area 1 Trap Limits for New Hampshire Lobster 
License Holders

    In October 1998, ASMFC approved a proposal from the State of New 
Hampshire for conservation equivalent lobster trap limits that vary 
from the 800 lobster trap limit in Area 1. That state's lobster 
management program provides for a two-tier lobster license system: 
State fishermen who provide documentation of landing more than 12,000 
lb (5,443 kg) of lobster in at least 2 years, from 1994 to 1998, 
receive a full commercial lobster license issued by the State of New 
Hampshire; those who cannot provide this documentation are issued a 
limited commercial lobster license. Those fishermen who qualify for a 
full license may fish up to 1,200 lobster traps in state waters, and 
those in the limited category may fish a maximum of 600 lobster traps 
in state waters. Following approval of the New Hampshire proposal under 
the ISFMP, the ASMFC recommended that NMFS modify Federal regulations 
to maintain the biological and socio-economic basis of New Hampshire's 
lobster management program. The ASMFC has not received similar 
proposals, although allowable, from the States of Maine and 
Massachusetts, which also border Area 1. The ASMFC requested that NMFS 
modify Federal regulations to allow Federal permit holders who elect to 
fish in Area 1 and also possess a New Hampshire full commercial lobster 
license to fish 400 lobster traps in New Hampshire state waters in 
addition to the 800 lobster traps they may fish in state and Federal 
waters of Area 1 under current Federal regulations. However, these 
fishermen would not be allowed to fish more than 800 lobster traps in 
the Federal waters of Area 1.
    There are approximately 80 Federal lobster permit holders with 
vessel ports in New Hampshire (1998 data) who harvest lobster primarily 
with trap gear. Twenty-two of these individuals also possess a full 
commercial lobster license, and 26 possess a limited commercial lobster 
license issued by the State of New Hampshire, as described in the 
DSEIS.
    Under current regulations, Federal lobster permit holders must 
abide by the stricter of either Federal or state lobster management 
measures. Under the preferred alternative, NMFS would waive this 
requirement with respect to the number of lobster traps for Federal 
lobster permit holders who elect to fish in Area 1 and who possess a 
valid New Hampshire full commercial lobster license for Area 1. 
Specifically, this proposed rule would not make any change in the 
number of traps allowed to be fished in the Federal waters of Area 1. 
However, a New Hampshire full commercial lobster licensee fishing 
aboard a federally permitted vessel would be allowed to fish an 
additional 400 lobster traps in New Hampshire state waters.

Lobster Management Area Boundary Clarification

    In Addendum 1 to the American Lobster ISFMP, the ASMFC revised the 
boundary lines for three of the LCMAs adjacent to Massachusetts, 
including Area 1, Area 2, and the Outer Cape Area, to bring the area 
boundaries more in line with traditional fishing practices in those 
areas and to correct an oversight in the specification of an Area 1 
boundary line in Amendment 3 to the ISFMP.
    NMFS proposes to implement compatible boundary lines for Area 1, 
Area 2, and the Outer Cape Area to maintain consistency with the 
ASMFC's American lobster ISFMP and to avoid confusion if the Federal 
and ASMFC area boundaries and their associated lobster management 
measures differ.

Cape Cod Canal Overlap

    The Cape Cod Canal (Canal) cuts through the Cape Cod peninsula in 
Massachusetts and connects the waters of Cape Cod Bay to the north 
(within Area 1) with the waters of Buzzards Bay to the south (within 
Area 2). The Canal is large enough at certain points to allow the 
setting of lobster trap gear, and lobster fishermen from both Areas 1 
and 2 have historically set trap gear in the Canal.
    To allow fishermen in the adjacent areas of Area 1 and Area 2 to 
maintain their historical ability to fish in the Canal, the Cape Cod 
Canal would be considered an area of overlap between Areas 1 and 2. To 
establish this overlap area, the existing boundaries of both Area 1 and 
Area 2 would be modified to encompass the Cape Cod Canal.

Outer Cape Lobster Management Area's Northern Boundary

    As a result of an oversight contained in Amendment 3 to the ISFMP, 
the boundary line coordinates separating the Outer Cape Area from Area 
1 did not extend to the shoreline of Massachusetts and, therefore, did 
not effectively separate these management areas. To correct this 
situation, under Addendum 1 to the ISFMP, the coordinates for the 
boundary line separating Area 1 and the northern boundary of the Outer 
Cape Area were revised and extended around the western tip of Cape Cod. 
This revision effectively extended the boundary line to the shoreline 
of Massachusetts and created an area of overlap between Area 1 and the 
Outer Cape Area.
    NMFS proposes to revise the existing boundary line coordinates as 
follows:
    Northern Boundary: Following the LORAN C 9960-Y-44120 line to the 
intersection with the 9960-W-13850 line (42 deg.04.25' N. lat., 
70 deg.17.22' W. long.), then following that line in a southeasterly 
direction to the intersection with the 9960-Y-44110 line (42 deg.02.84' 
N. lat., 70 deg.16.1' W. long.), then following that line in an 
easterly direction to Race Point (42 deg.03.35' N. lat., 70 deg.14.2' 
W. long.) in the town of Provincetown, MA.
    Overlap Zone Boundary: Beginning at Race Point, MA (42 deg.03.35' 
N. lat., 70 deg.14.2' W. long.) following the LORAN C 9960-Y-44110 in a 
westerly direction to its intersection with 9960-W-13850 line 
(42 deg.02.84' N. lat., 70 deg.16.1' W. long.), then following that 
line in a southeasterly direction to its intersection with a 9960-X-
25330 line (41 deg.52' N. lat., 70 deg.07.49' W. long.), then following 
that line in a northeasterly direction to where it meets the shoreline 
of Great Island in the town of Wellfleet, MA (41 deg.54.46' N. lat., 
70 deg.03.99' W. long.), then following the shoreline in a northerly 
direction back to the beginning.
    When the coordinates for the recommended revision to the Overlap 
Zone boundary between Area 1 and the Outer Cape Area were plotted, 
there was a problem with the information provided in Addendum I. As a 
result, the chart included in the Addendum does not agree with the 
associated LORAN C coordinates. The chart in Addendum I indicates that 
the area of overlap extends to a point northeast of and beyond Race 
Point, MA, continuing around the tip of Cape Cod, while the coordinates 
denote an overlap area beginning at Race Point, MA. NMFS developed the 
coordinates in this section based on the coordinates in Addendum I, not 
on the graphics (chart) in Addendum I. The ASMFC has been informed of 
this discrepancy.

Boundary Change Between Area 2 and The Outer Cape Management Area

    In Addendum I the ASMFC revised the boundary separating Area 2 and 
the Outer Cape Area, which runs from the southeastern tip of Cape Cod 
to Nantucket Island, by shifting it west by

[[Page 289]]

5 minutes of longitude, from 70 deg. W. Long. to 70 deg. 05' W. Long.

Revised Boundary Description for Area 1, Area 2, and the Outer Cape 
Area

EEZ Nearshore Management Area 1

    EEZ Nearshore Management Area 1 is defined by the area including 
state and Federal waters that are nearshore in the Gulf of Maine. This 
proposed rule would re-define Area 1 to be the area bounded by straight 
lines connecting the following points, in the order stated, and the 
coastline of Maine, New Hampshire, and Massachusetts to the 
northernmost point of Cape Cod:

------------------------------------------------------------------------
                  Point                      Latitude        Longitude
------------------------------------------------------------------------
A                                          43 deg.58' N.   67 deg.22' W.
B                                          43 deg.41' N.   68 deg.00' W.
C                                          43 deg.12' N.   69 deg.00' W.
D                                          42 deg.49' N.   69 deg.40' W.
E                                           42 deg.15.5'   70 deg.40' W.
                                                      N.
F                                          42 deg.10' N.   69 deg.56' W.
G                                           42 deg.05.5'   70 deg.14' W.
                                                      N.
G1                                         42 deg.04.25'   70 deg.17.22'
                                                      N.              W.
G2                                         42 deg.02.84'    70 deg.16.1'
                                                      N.              W.
G3                                         42 deg.03.35'    70 deg.14.2'
                                                      N.              W.
------------------------------------------------------------------------

    From point ``G3'' along the coastline of Massachusetts, including 
the southwestern end of the Cape Cod Canal, continuing along the 
coastlines of Massachusetts, New Hampshire, Maine, and the seaward EEZ 
boundary back to Point A.

EEZ Nearshore Management Area 2

    EEZ Nearshore Management Area 2 is defined by the area, including 
state and Federal waters that are nearshore in Southern New England, 
bounded by straight lines connecting the following points, in the order 
stated:

------------------------------------------------------------------------
                  Point                      Latitude        Longitude
------------------------------------------------------------------------
H                                          41 deg.40' N.   70 deg.05' W.
I                                          41 deg.15' N.   70 deg.05' W.
J                                           41 deg.21.5'    69 deg.16.5'
                                                      N.              W.
K                                          41 deg.10' N.    69 deg.06.5'
                                                                      W.
L                                          40 deg.55' N.   68 deg.54' W.
M                                           40 deg.27.5'   71 deg.14' W.
                                                      N.
N                                           40 deg.45.5'   71 deg.34' W.
                                                      N.
O                                          41 deg.07' N.   71 deg.43' W.
P                                           41 deg.06.5'   71 deg.47' W.
                                                      N.
Q                                           41 deg.11.5'   71 deg.47.25'
                                                      N.              W.
R                                           41 deg.18.5'    71 deg.54.5'
                                                      N.              W.
------------------------------------------------------------------------

    From point ``R'' along the maritime boundary between Connecticut 
and Rhode Island to the coastal Connecticut/Rhode Island boundary and 
then back to point ``H'' along the Rhode Island and Massachusetts 
coast, including the northeastern end of the Cape Cod Canal.

EEZ Nearshore Outer Cape Lobster Management Area

    EEZ Nearshore Outer Cape Lobster Management Area is defined by the 
area, including state and Federal waters off Cape Cod, bounded by 
straight lines connecting the following points, in the order stated:

------------------------------------------------------------------------
                  Point                      Latitude        Longitude
------------------------------------------------------------------------
F                                          42 deg.10' N.   69 deg.56' W.
G                                           42 deg.05.5'   70 deg.14' W.
                                                      N.
G1                                         42 deg.04.25'   70 deg.17.22'
                                                      N.              W.
G2                                         42 deg.02.84'    70 deg.16.1'
                                                      N.              W.
G4                                         41 deg.52' N.   70 deg.07.49'
                                                                      W.
G5                                         41 deg.54.46'   70 deg.03.99'
                                                      N.              W.
     From Point ``G5'' along the outer Cape Cod coast to point ``H''
H                                          41 deg.40' N.   70 deg.05' W.
H1                                         41 deg.18' N.   70 deg.05' W.
  From Point ``H1'' along the eastern coast of Nantucket Island, MA, to
                               Point ``I''
I                                           41 deg.15' N   70 deg.00' W.
J                                           41 deg.21.5'   69 deg.16' W.
                                                      N.
                  From Point ``J'' Back to Point ``F.''
------------------------------------------------------------------------

Clarification of Lobster Trap Tag Requirements

    NMFS includes in this proposed rule a technical amendment to the 
regulations clarifying that Federal lobster permit holders must attach 
federally approved lobster trap tags to all lobster traps fished in any 
portion of any management area (whether in state or Federal waters). 
This requirement is not new, but was not clearly specified in the 
regulatory text. This amendment would clarify a tagging requirement 
that was previously specified by reading several sections in 
combination, including regulations found under 50 CFR 697.7 and 50 CFR 
697.19. This technical amendment is intended to make the regulations 
easier to understand.

Classification

    This proposed rule has been determined to be significant for the 
purposes of Executive Order 12866.
    NMFS prepared a DSEIS/RIR/IRFA for this action; a notice of 
availability was published on November 24, 2000 (65 FR 70567). The 
Initial Regulatory Flexibility Analysis (IRFA), in compliance with the 
Regulatory Flexibility Act, describes the economic impacts of the 
proposed rule, if adopted, on small entities. A summary of the IRFA 
follows: Reasons why the action is considered, as well as the 
objectives and legal basis for this rule, are described in the IRFA and 
the preamble to this rule and are not repeated here. All participants 
in the lobster fishery are considered to be small entities. 
Implementation of historical participation and lobster trap limits in 
Areas 3, 4, and 5 is expected to result in a reduction in the number of 
Federal permit holders qualified to fish for lobster with traps in 
these management areas. Individuals failing to meet the proposed 
qualification criteria may: (1) decide to fish in areas not subject to 
historical participation; (2) decide to retain their lobster fishing 
permit but not use it; (3) leave the lobster fishery entirely by 
selling his/her lobster vessel; or (4) fail to renew their Federal 
lobster permit.
    Although it can be assumed that there will be no immediate impact 
on existing fishing operations that do not harvest lobster in 
substantial numbers with lobster trap gear, the option to do so in the 
future will be precluded under a trap fishing effort program based on 
historical participation. This may affect the economic value associated 
with their Federal lobster permit in the event that permit holders wish 
to sell their vessel to buyers who would otherwise desire to fish for 
lobster with traps. Vessels that qualify to participate in Areas 3, 4, 
and/or 5 will likely see a reduction in gear conflict and be protected 
from lobster fishing effort expansion. The proposed action will also 
alleviate socio-economic impacts from any reduction in lobster harvests 
which may have resulted if qualifying vessels historically fished a 
number of lobster traps in excess of the current fixed trap limits. 
Permit holders who fish greater amounts of gear than allowed by the 
proposed maximum lobster trap limits may experience a small, yet 
unquantifiable, reduction in landings if they are unable to alter their 
fishing practices to mitigate this lower level of lobster trap fishing 
effort.
    The proposed action to allow owners of vessels who are in 
possession of a Federal limited access lobster permit and who also 
possess a New Hampshire full commercial lobster fishing license to fish 
up to 800 lobster traps in Federal waters and a maximum of 400 
additional lobster traps in New Hampshire state waters would alleviate 
adverse impacts on fishing practices and income which would otherwise 
be imposed by a lower lobster trap limit. Due to more restrictive 
lobster trap limits imposed on New Hampshire part time commercial 
lobster permit holders, a potential overall reduction in traps fished 
by commercial lobster permit holders in that state could result in some 
unquantified decrease in lobster fishing mortality and marine mammal 
and sea turtle trap gear entanglements.
    The proposed action to revise and clarify the boundary coordinates 
within the state waters of Massachusetts for Area 1, 2, and the Outer 
Cape

[[Page 290]]

Management Area would: allow Federal lobster permit holders to maintain 
traditional fishing practices; avoid confusion and maintain consistency 
with the ISFMP; and allow Federal American lobster permit holders to 
fish under lobster management measures associated with the respective 
management area. If implemented, the proposed boundary revisions would 
have no direct effect on the lobster resource since it is specific to a 
minor modification of coordinates for lobster area boundaries in 
Massachusetts state waters and is not expected to substantially affect 
marine mammals or sea turtles.
    The DSEIS/RIR/IRFA analyzed a preferred alternative which 
recommended the implementation of historical participation measures to 
control lobster fishing effort in Areas 3, 4 and 5, with a maximum 
lobster trap limit and a lobster trap reduction schedule for Area 3; 
implementation of conservation equivalent trap limits in New Hampshire 
waters of Area 1; and clarification of boundaries of specific lobster 
management areas. The DSEIS/RIR/IRFA also analyzed five alternatives to 
specific components of the preferred alternative. Three of these 
alternatives propose implementation of historical participation as a 
means to control lobster fishing effort in Areas 3, 4, and 5. Due to 
the unique nature of the proposed action relating to Area 1 lobster 
trap limits for Federal lobster permit holders fishing in New Hampshire 
waters and management area boundary clarifications, only one 
alternative (no action-status quo) was presented for each of these two 
components of this proposed rule.

Impacts of Historical Participation for Areas 3, 4, and 5

    The three alternatives relating to historical participation 
included: taking no action; implementing historical participation 
requirements for Areas 3, 4, and 5, but retaining current trap limits; 
and implementing historical participation requirements as identified 
under the proposed action, but incorporating a maximum trap allocation 
for Areas 4 and 5.
    Under current Federal regulations, owners of vessels that elect to 
harvest American lobsters with traps are required to inform NMFS each 
year of the lobster management area(s) they intend to set trap gear in. 
The election of one or more LCMA requires only that the vessel possess 
a current Federal American lobster limited access permit. The DSEIS/
RIR/IRFA for this action, announced by a notice of availability 
published on November 24, 2000 (65 FR 70567), used data available to 
NMFS for the 2000-2001 fishing year, from May 2000 through August 2000, 
on the number of owners of vessels that elected to harvest American 
lobsters in specific LCMAs. Some owners of vessels in possession of a 
Federal lobster permit may have elected LCMAs after August 2000, or may 
have elected LCMAs with no intention to fish with lobster traps in one 
or more of the elected LCMAs. Therefore, the number of vessels electing 
to fish in LCMAs 3, 4, or 5 may be higher than the number identified in 
the DSEIS/RIR/IRFA for this action and the total number that do not 
qualify may be higher. Following the comment period on this proposed 
rule, a Final Supplemental Environmental Impact Statement/Regulatory 
Impact Review/Final Regulatory Flexibility Analysis (FSEIS/RIR/FRFA) 
will analyze and evaluate the effects of implementing regulations for 
this action and will incorporate the most current data available to 
NMFS at that time.
    The DSEIS/RIR/IRFA analysis for this action indicated that 
approximately 3,361 vessels possess a current Federal lobster permit 
and fish for lobster with either trap or non-trap gear. Of the 3,361 
lobster vessels that possess a current Federal lobster permit, 769 have 
designated Area 3 as at least one of their areas for trap fishing. Of 
these, NMFS estimates that the total number of vessels that would 
qualify under the proposed historical qualification criteria to 
continue fishing for lobster with traps in the Area 3 lobster trap 
fishery would range from a low of 53 to a high of 117.
    Similarly, of the approximately 405 vessels in possession of 
current Federal lobster permits that were designated for trap fishing 
in either Areas 4 or 5, the total number of vessels that would qualify 
to continue fishing with traps in Areas 4 and 5 on the basis of the 
proposed qualification criteria for the Areas 4 and 5 lobster trap 
fisheries would range from 47 to 60. The proposed implementation of a 
maximum trap limit of 1,440 lobster traps in Areas 4 and 5 is expected 
to result in a reduction in the number of lobster traps fished in these 
areas. Although NMFS has no information on the total number of lobster 
traps fished in those areas, data provided to NMFS by New Jersey, 
summarizing the results of a survey of New Jersey lobstermen, indicate 
that approximately 15% (14 individuals) of fishermen responding to the 
survey who possess both a New Jersey lobster trap license and a Federal 
lobster permit have fished with greater than 1,440 traps in LCMA 4. The 
fishing effort for these 14 permit holders has ranged from 1,500 to 
2,500 (with an average of 1,868) traps. On the basis of this 
information, establishment of a maximum trap limit for LCMA 4 would 
result in at least a reduction of 26,152 traps, with a corresponding, 
but unquantifiable, reduction in lobster fishing mortality.
    The exact degree of lobster trap reductions in Areas 4 and 5 is 
unquantifiable because, in the Federal American lobster fishery, there 
are currently no requirements to submit vessel trip reports. In Area 3, 
where lobster traps will be reduced over a 4-year period, the scheduled 
lobster trap reductions are likely to result in a small, yet 
unquantifiable, reduction in Area 3 landings. If markets are affected, 
the effect is likely to be small. Landings in Areas 4 and 5 accounted 
for less than 10 percent of total domestic lobster landings in 1999, 
and market effects from lobster trap reductions in Area 3 may occur in 
a limited segment of the market for larger lobsters (i.e., the offshore 
fishery lands larger lobsters, on average, than other components of the 
lobster fishery as a whole). If lobster prices do increase, vessels 
fishing in areas not subject to historical participation and where 
expansion of trap effort is possible (i.e., up to the 800 lobster trap 
limit) may increase their effort and offset any reduction in landings 
from Areas 3, 4, and 5. In this dynamic setting, lobster prices are 
likely to be unaffected by regulatory action under this proposed rule.
    The effect of limiting access to historical participants in Areas 
3, 4, and 5 is expected to have two major economic effects. First, 
limiting access in these areas will protect qualifiers from effort 
expansion. Second, lobster trap allocations in Areas 3, 4, and 5 and 
overall trap reductions in Area 3 over a 4-year period based on 
historical participation will preserve the competitive position and 
structure of the offshore fishery. Although it can be assumed that 
there will be no immediate impact on current fishing operations that do 
not harvest lobster in substantial numbers with trap gear, the option 
to do so in the future will be precluded under a trap fishing effort 
program based on historical participation. This situation may also 
impact the ``economic value'' associated with these permits in the 
event that permit holders wish to sell their vessels to buyers who 
would otherwise desire to fish in the lobster trap fishery, but would 
be unable to do so. Economic effects will be greater for those vessels 
that are currently fishing lobster traps in Areas 3, 4, or 5, but will 
not qualify for historical participation in these areas because they 
will not be able to meet

[[Page 291]]

one or more of the qualification criteria. Effective on May 1, 2000, 
Federal lobster permit holders are required to elect on their permits 
the lobster management areas in which they intend to fish for lobster 
with traps. However, NMFS does not have adequate data on the extent to 
which permit holders, although authorized, actually fish with traps in 
the elected management areas. Given this uncertainty, Federal lobster 
permit data indicates that a maximum of 769 permit holders elected to 
fish for lobster with traps in Area 3. On the basis of NMFS analyses, a 
low of 652 to a high of 716 Federal permit holders, who would meet the 
qualification criteria to fish with lobster traps in Area 3 under this 
proposed rule, would no longer be able to continue fishing with lobster 
traps in this management area.
    Analyses of impacts for current participants in the Areas 4 and 5 
lobster trap fisheries are combined because of the lack of more precise 
information on lobster trap fishing locations in these areas. Federal 
lobster permit data indicates that, under current Federal regulations, 
405 vessels in possession of current Federal lobster permits were 
designated for lobster trap fishing in Areas 4 and/or 5. NMFS estimates 
that a low of 47 to a high of 60 vessels would be able to meet the 
proposed qualification criteria for Areas 4 and/or 5 under this 
proposed rule and, consequently, would be able to continue fishing with 
lobster traps in Areas 4 and 5. Lobster vessels that do not qualify 
will still be able to fish for lobster with traps, but they will have 
to do so by moving their traps into lobster management areas (other 
than Areas 3, 4, and 5) that may already be congested, likely resulting 
in increased fishing effort, additional congestion, and a potential 
reduction in overall productivity and profitability. The extent to 
which non-qualifiers would potentially decide to move trap operations 
to other management areas is unknown. Furthermore, moving may be most 
difficult for non-qualifying lobster permit holders who fish traps in 
inshore areas and have vessel ports south of New York, since Area 2 
(waters between Cape Cod and Long Island Sound) would be the closest 
lobster management area not requiring historical participation.
    Based on available information, approximately 14 vessels fished 
more than 1,440 lobster traps in Areas 4 and 5 combined, out of the 
total number of vessels electing to fish in Areas 4 and/or 5. On 
average, these vessels fished 1,868 lobster traps prior to the 
implementation of a fixed trap limit in January 2000. However, current 
regulations limit vessels electing to fish in Areas 4 and/or 5 to 800 
lobster traps. There may be a small, yet unquantifiable, reduction in 
landings if impacted vessels are unable to alter their fishing 
practices to mitigate this lower level of trap fishing effort compared 
to historical trap levels. Yet, given that the current regulations 
limit these vessels to 800 lobster traps, some qualifying vessels that 
previously fished traps in excess of the current fixed trap limit may 
be able to increase the number of traps fished up to the proposed trap 
cap of 1,440 lobster traps for Areas 4 and 5, assuming they are 
allocated 1,440 lobster traps under a historical participation regime.
    The incentive and/or ability to increase traps fished would depend 
on the scale of operation and other socio-economic factors. Incentives 
may include a desire to establish and document a history of lobster 
trap fishing in anticipation of future fishing effort reduction 
measures and of a decline in alternative fishing opportunities in other 
fisheries. Since the lobster trap fishery is a territorial fishery, 
removal of traps by non-qualifiers or by vessels fishing in excess of 
the proposed 1,440 lobster trap cap will open up territory that other 
vessels may exploit.
    In addition, an increase in the number of lobster traps fished does 
not automatically translate to higher gross revenue; other factors such 
as market conditions and operating costs have to be evaluated. 
Fishermen setting lobster traps close to shore are likely to be able to 
maintain landing levels because they can tend their lobster traps more 
often. Harvest costs may decline for vessels that have historically 
fished more than 1,440 lobster traps prior to the implementation of a 
fixed trap limit; however, revenues may decline if fishing fewer 
lobster traps translates into fewer lobster being landed. Assuming non-
qualifiers cannot or will not move trap operations to other management 
areas, they would no longer be able to fish for lobster with trap gear. 
Some such fishermen may be able to switch to other fisheries.

Historical Qualification Costs

    Vessel owners would be required to provide an affidavit and 
supporting documentation to substantiate their historical participation 
application when attempting to qualify in one, two, or in all three of 
the lobster management areas proposing to implement historical 
participation in this proposed rule. The estimated time required to 
provide an affidavit and supporting documentation to substantiate the 
historical participation application are specified under collection-of-
information requirements, while historical qualification costs are 
primarily associated with costs to locate, copy, telephone, and mail 
the submission of the supporting documentation. The average historical 
qualification cost, per vessel, for vessel owners who have been 
notified by NMFS that they pre-qualify for historical participation in 
Areas 3, 4, and/or 5, based on data available to NMFS, is estimated to 
be $5.45 to provide an affidavit concurring with the NMFS pre-
qualification determination.
    Vessels that do not pre-qualify need to submit the necessary forms 
and all supporting documentation. The average historical qualification 
cost, per vessel, for vessels submitting documentation to qualify in 
one area ranges from $7.38 for Areas 4 and 5 to $8.89 for Area 3. 
Documentation costs are higher for Area 3 due to the requirement to 
show landings of at least 25,000 pounds during the qualifying year, 
while criteria for Areas 4 and 5 have no minimum landings requirement. 
The average historical qualification cost, per vessel, for vessels 
submitting documentation to qualify in two lobster management areas 
reflects the higher documentation costs associated with the Area 3 
minimum landings criteria. The per vessel qualification costs range 
from $9.98 for vessels submitting documentation to qualify for Areas 4 
and 5 (but not Area 3), to $10.45 for vessels submitting documentation 
to qualify for Area 3 and either Areas 4 or 5. The average historical 
qualification cost, per vessel, for vessels submitting documentation to 
qualify in all three lobster management areas is $14.35. These costs 
are considered insignificant relative to other costs of doing business.
    The proposed action concerning New Hampshire conservation 
equivalent trap limits would allow those Federal lobster permit holders 
who are also authorized by the State of New Hampshire to fish more 
lobster traps in state waters (1,200 rather than 600 lobster traps) to 
maintain or increase their relative share of landings in state waters 
and to preserve the competitive position of that industry sector. It is 
expected that Federal permit holders who are authorized to fish only 
600 rather than 1,200 lobster traps in state waters under New Hampshire 
state regulations would also be able to retain their historical 
competitive position but will be unable to expand fishing operations 
above 600 lobster traps.
    Revision and clarification of the boundary coordinates for lobster 
management areas in Massachusetts waters will allow fishermen to 
maintain

[[Page 292]]

traditional fishing practices and fish under the lobster management 
measures associated with the respective management area. Implementation 
of the proposed revision to these boundary lines will also maintain 
consistency with the identification of lobster management areas as 
established under the ISFMP and will avoid the confusion that could 
result if ISFMP and Federal area boundaries and their associated 
lobster management measures differ.
    This proposed rule, supplemented by the DSEIS, describes associated 
reporting, record keeping, and compliance requirements. Special 
professional skills would not be required to fulfill these 
requirements. There are no other Federal regulations that overlap or 
duplicate measures under this proposed rule. This proposed rule 
contains collection-of-information requirements subject to the 
Paperwork Reduction Act (PRA). The following collection-of-information 
requirements are being restated and have already been approved by the 
Office of Management and Budget (OMB) as shown: vessel permit 
applications approved under OMB control number 0648-0202 with the 
response times per application of 30 minutes for a new application, and 
15 minutes for renewal applications; and a lobster trap tag requirement 
approved under OMB control number 0648-0351 with a response time of 1 
minute per tag.
    This proposed rule also contains new collection-of-information 
requirements subject to the PRA which have been submitted to OMB for 
approval. The public reporting burden for each collection of 
information per response is indicated in parentheses in the following 
list of new requirements, including the time for reviewing 
instructions, searching existing data sources, gathering and 
maintaining the data needed, and completing and reviewing the 
collection of information.
    The new requirements are as follows:
    1. Provision of documentation of possession of a current valid 
Federal lobster permit (5 minutes);
    2. Provision of documentation to demonstrate at least 200 lobster 
traps were set, allowed to soak, hauled back, and re-set in Areas 3, 4, 
or 5 during a 2-consecutive calendar month period in any calendar year 
during the qualification period from March 25, 1991, through September 
1, 1999 (15 minutes);
    3. (For Area 3 only) Provision of sales receipts or other documents 
pertaining to the sale of lobsters indicating the landing of at least 
25,000 pounds of lobster from any location during the year used as the 
qualifying year from March 25, 1991, to September 1, 1999 (10 minutes);
    4. Provision of documentation for proof of historical participation 
in two rather than one lobster management area (additional 15 minutes 
if different consecutive two-month periods of trap fishing are used);
    5. Provision of documentation for proof of historical participation 
in three rather than one lobster management area (additional 30 minutes 
if three different consecutive two-month periods are used);
    6. Completion of lobster trap fishing area eligibility application 
form (2 minutes for each area selected);
    7. Provision of affidavit stating total number of individual 
lobster traps the permit holder set, allowed to soak, hauled back, and 
re-set in Areas 3, 4, or 5 at any one time during the qualifying year 
(15 minutes); and
    8. Provision of a written appeal request to the Regional 
Administrator by non-qualifying permit holders (15 minutes).
    Public comment is sought regarding: whether these proposed 
collections-of-information are necessary for the proper performance of 
the functions of the agency, including whether the information has 
practical utility; the accuracy of the burden estimates; ways to 
enhance the quality, utility, and clarity of the information to be 
collected; and ways to minimize the burden of the collection of 
information, including information through the use of automated 
collection techniques or other forms of information technology.
    Send comments regarding these burden estimates or any other aspect 
of the data requirements, including suggestions for reducing the 
burden, to NMFS and to the Office of Information and Regulatory 
Affairs, Office of Management and Budget (see ADDRESSES).
    Notwithstanding any other provision of law, no person is required 
to respond to, nor shall any person be subject to a penalty for failure 
to comply with, a collection of information subject to the requirements 
of the PRA, unless that collection-of-information displays a currently 
valid OMB control number.
    An updated Biological Opinion under Section 7 of the Endangered 
Species Act (ESA) was issued for the American lobster fishery on 
December 17, 1998. A formal consultation concluded that the continued 
operation of the American lobster fishery operating under new measures 
implemented to reduce entanglements, ``may affect but is not likely to 
jeopardize the continued existence of the northern right whale, 
humpback whale, fin whale, blue whale, sperm whale, sei whale, 
leatherback sea turtle, and loggerhead sea turtle and is not likely to 
destroy or adversely modify critical habitat that has been designated 
for the northern right whale.'' In June 2000, formal consultations on 
the lobster fishery were reinitiated. An updated Biological Opinion 
under Section 7 of the ESA was issued for the Federal American lobster 
fishery on June 14, 2001. The updated Biological Opinion concluded that 
the Federal American lobster fishery is likely to jeopardize the 
continued existence of the western North Atlantic right whale, but is 
not likely to destroy or adversely modify critical habitat designated 
for the right whale. The Biological Opinion also concluded that the 
Federal American lobster fishery is not likely to jeopardize the 
continued existence of humpback, fin, sei, blue, and sperm whales; or 
loggerhead, Kemp's ridley, green, leatherback, and hawksbill sea 
turtles. Following release of the updated Biological Opinion on June 
14, 2001, a formal consultation was initiated on the effects of this 
proposed action on endangered and threatened species.

List of Subjects in 50 CFR Part 697

    Fisheries, Fishing, Reporting and recordkeeping requirements.

    Dated: December 20, 2001.
Rebecca Lent.
Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
Service.

    For the reasons set out in the preamble, 50 CFR chapter VI, part 
697, is proposed to be amended as follows:

PART 697--ATLANTIC COASTAL FISHERIES COOPERATIVE MANAGEMENT

    1. The authority citation for part 697 continues to read as 
follows:

    Authority: 16 U.S.C. 5101 et seq.

    2. In Sec.  697.4, paragraphs (a)(7)(vi) through (xi) are added to 
read as follows:


Sec.  697.4  Vessel permits and trap tags.

    (a) * * *
    (7) * * *
    (vi) Participation requirements for EEZ Nearshore Management Area 
4. For fishing year 2002 and beyond, to fish for lobster with lobster 
traps in EEZ Nearshore Management Area 4 (Area 4), the owner of a 
vessel with a Federal lobster permit must provide the following to the 
Regional Administrator within [45 days after the date of publication of 
the final rule]:
    (A) A copy of the vessel's current Federal lobster permit;
    (B) Written documentation demonstrating that at least 200 lobster

[[Page 293]]

traps were set, allowed to soak, hauled back, and re-set in Area 4 
during a 2-consecutive calendar month period in any calendar year 
(hereinafter, ``the qualifying year'') during the period from March 25, 
1991, through September 1, 1999 (hereinafter, ``the qualification 
period'') excluding the time periods in calendar years 1991 and 1999 
that are outside the qualification period (i.e., January 1, 1991, 
through March 24, 1991, and September 2, 1999, through December 31, 
1999). Documentation may include copies of vessel logbooks; permit 
applications; Federal Fishing Vessel Trip Reports (NOAA Form 88-30); 
official state reporting documentation showing the number of lobster 
traps fished, including, but not limited to, state report cards, 
license application forms, and catch reports; an approved Federal 
Fishing Vessel and Gear Damage Compensation Fund Report (NOAA Form 88-
176); and/or other forms of credible documentation; and
    (C) A signed affidavit that certifies the number of individual 
lobster traps the permit holder set, allowed to soak, hauled back, and 
re-set in Area 4 at any one time during the chosen qualifying year must 
be submitted to the Regional Administrator for use in determining the 
permitted vessel's lobster trap allocation. This affidavit must be 
accompanied by credible, written documents that corroborate the number 
of individual lobster traps claimed in the affidavit. Such documents 
may include the types of documents identified in paragraph 
(a)(7)(vi)(B) of this section. Documentation submitted to support the 
affidavit may reflect activity during any point within the qualifying 
year and does not necessarily need to represent the 2-consecutive month 
period used in paragraph (a)(7)(vi)(B) of this section.
    (vii) Participation requirements for EEZ Nearshore Management Area 
5. For fishing year 2002 and beyond, to fish for lobster with lobster 
traps in EEZ Nearshore Management Area 5 (Area 5), the owner of a 
vessel with a Federal lobster permit must provide the following to the 
Regional Administrator within [45 days after the date of publication of 
the final rule]:
    (A) A copy of the vessel's current Federal lobster permit;
    (B) Written documentation demonstrating that at least 200 lobster 
traps were set, allowed to soak, hauled back, and re-set in Area 5 
during a 2-consecutive calendar month period in any calendar year 
(hereinafter, ``the qualifying year) during the period from March 25, 
1991, through September 1, 1999 (hereinafter, ``the qualification 
period'') excluding the time period in calendar years 1991 and 1999 
that are outside the qualification period (i.e., January 1, 1991, 
through March 24, 1991, and September 2, 1999, through December 31, 
1999). Documentation may include copies of vessel logbooks; permit 
applications; Federal Fishing Vessel Trip Reports (NOAA Form 88-30); 
official state reporting documentation showing the number of lobster 
traps fished, including, but not limited to, state report cards, 
license application forms, and catch reports; an approved Federal 
Fishing Vessel and Gear Damage Compensation Fund Report (NOAA Form 88-
176); and/or other forms of credible documentation; and
    (C) A signed affidavit that certifies the number of individual 
lobster traps the permit holder set, allowed to soak, hauled back, and 
re-set in Area 5 at any one time during the qualifying year must be 
submitted to the Regional Administrator for use in determining the 
permitted vessel's lobster trap allocation. This affidavit must be 
accompanied by credible, written documents that corroborate the number 
of individual lobster traps claimed in the affidavit. Such documents 
may include the types of documents identified in paragraph 
(a)(7)(vii)(B) of this section. Documentation submitted to support the 
affidavit may reflect activity during any point within the qualifying 
year and does not necessarily need to represent the 2-consecutive month 
period used in paragraph (a)(7)(vii)(B) of this section.
    (viii) Participation requirements for EEZ Offshore Management Area 
3. For fishing year 2002 and beyond, to fish for lobster with traps in 
EEZ Offshore Management Area 3 (Area 3), a Federal lobster permit 
holder must provide the following to the Regional Administrator within 
[45 days after the date of publication of the final rule]:
    (A) A copy of the vessel's current Federal lobster permit;
    (B) Written documentation demonstrating that at least 200 lobster 
traps were set, allowed to soak, hauled back, and re-set in Area 3 
during a 2-consecutive calendar month period in any calendar year 
(hereinafter, ``the qualifying year'') during the period from March 25, 
1991, through September 1, 1999 (hereinafter, ``the qualification 
period'') excluding the time periods in calendar years 1991 and 1999 
that are outside the qualification period (i.e., January 1, 1991, 
through March 24, 1991, and September 2, 1999, through December 31, 
1999). Documentation may include copies of vessel logbooks; permit 
applications; Federal Fishing Vessel Trip Reports (NOAA Form 88-30); 
official state reporting documentation showing the number of lobster 
traps fished, including, but not limited to, state report cards, 
license application forms, and catch reports; an approved Federal 
Fishing Vessel and Gear Damage Compensation Fund Report (NOAA Form 88-
176); and/or other forms of credible documentation that indicate that 
at least 200 lobster traps were set, allowed to soak, hauled back, and 
re-set in Area 3 during a 2-consecutive calendar month period in any 
chosen qualifying year during the qualification period.
    (C) Sales receipts or other documents pertaining to the sale of 
lobsters and indicating the landing of at least 25,000 lb (11,340 kg) 
of lobster from any location during the calendar year used as the 
qualifying year from March 25, 1991, through September 1, 1999, to 
qualify to fish for lobster with traps Area 3; and
    (D) A signed affidavit to NMFS, certifying the total number of 
individual lobster traps the permit holder set, allowed to soak, hauled 
back, and re-set in Area 3 at any one time during the qualifying year. 
This affidavit must be accompanied by the same or similar type of 
documentation identified in paragraph (a)(7)(viii)(B). Documentation 
submitted to support the affidavit may reflect activity during any 
point within the qualifying year and does not necessarily need to 
represent the 2-consecutive month period used in paragraph 
(a)(7)(viii)(B) of this section.
    (ix) Qualifying year for vessels seeking to fish for lobster with 
traps in more than one area of Areas 3, 4, and 5. Any Federal lobster 
permit holder applying for a lobster trap allocation under this section 
who also applies for a second or third lobster trap allocation among 
Areas 3, 4, and 5, must use the same qualifying year for all areas, to 
avoid a combined lobster trap allocation greater than the number of 
lobster traps that the permit holder ever fished with any one vessel in 
any one year.
    (x) Notification of eligibility to fish for lobster with lobster 
traps in 2002 in Areas 3, 4, and 5. (A) NMFS will attempt to notify all 
owners of vessels for which NMFS has credible evidence available that 
they meet some or all of the qualification criteria described in 
paragraph (a)(7)(vi), (a)(7)(vii), or (a)(7)(viii) of this section and 
that they may qualify for a limited access American lobster permit for 
one or more of Areas 3, 4, and/or 5. Vessel owners must still provide 
documentation indicating that the vessel meets the qualification 
criteria for which NMFS lacks information, complete an affidavit

[[Page 294]]

certifying the total number of individual lobster traps the permit 
holder set, allowed to soak, hauled back, and re-set in Areas 3, 4, 
and/or 5 at any one time during the qualifying year, and apply for a 
limited access lobster permit for Areas 3, 4, and/or 5 by April 30, 
2002, to be considered for an Areas 3, 4, and/or 5 limited access 
lobster permit. Consistent with paragraph (a)(7)(ix) of this section, 
any Federal lobster permit holder applying for a lobster trap 
allocation under this section who also applies for a second or third 
lobster trap allocation among Areas 3, 4, and 5, must use the same 
qualifying year for all areas to avoid a combined lobster trap 
allocation greater than the number of lobster traps that the permit 
holder ever fished with any one vessel in any one year. In addition, 
Federal lobster permit holders who elect to fish in multiple lobster 
conservation management areas are required under paragraph (a)(7)(iv) 
of this section to abide by the most restrictive regulations of all 
areas elected, regardless of which area the permit holder is fishing in 
at any given time.
    (B) If a vessel owner has not been notified that the vessel is 
eligible to be issued a limited access American lobster permit for 
Areas 3, 4, and/or 5, and the vessel owner believes that there is 
credible evidence that the vessel does qualify under the listed 
criteria, the vessel owner must apply for a limited access American 
lobster permit for Areas 3, 4, and/or 5 by April 30, 2002, to fish for 
lobster with traps in Areas 3, 4, and/or 5 after that date and submit 
documentation substantiating that the vessel meets the area 
qualification criteria as described in paragraphs (a)(7)(vi)(A) and 
(B); (a)(7)(vii)(A) and (B); and (a)(7)(viii)(A) through (C) of this 
section; and submit a signed affidavit certifying the total number of 
lobster traps he/she set, allowed to soak, hauled back, and re-set in 
Areas 3, 4, and/or 5 at any one time during the qualifying year as 
described in paragraphs (a)(7)(vi)(C), (a)(7)(vii)(C), and 
(a)(7)(viii)(D) of this section.
    (xi) Appeal of denial of permit. (A) Any applicant denied a limited 
access American lobster permit for Areas 3, 4, and/or 5, may appeal to 
the Regional Administrator within 30 days of the date indicated on the 
notice of denial. Any such appeal must be in writing. The only ground 
for appeal is that the Regional Administrator erred in concluding that 
the vessel did not meet the criteria in paragraph (a)(7)(vi), (vii), 
and/or (viii) of this section. The appeal must set forth the basis for 
the applicant's belief that the Regional Administrator's decision was 
made in error.
    (B) Appeal review. (1) The Regional Administrator will appoint a 
designee who will make the initial decision on the appeal.
    (2) The appellant may request a review by the Regional 
Administrator of the initial decision on the appeal by so requesting 
such a review in writing within 30 days of the date on the notice of 
the initial decision on the appeal. The appellant may present his/her 
objections to the initial decision on the appeal at a hearing before an 
officer appointed by the Regional Administrator. The hearing officer 
must make findings of fact and a recommendation to the Regional 
Administrator. Upon receiving the findings and the recommendation, the 
Regional Administrator must decide on the appeal, which will be the 
final decision of the Department of Commerce. If the appellant does not 
request a review of the initial decision on the appeal within 30 days 
of the date on the notice of the initial decision on the appeal, then 
the initial decision is the final administrative action of the 
Department of Commerce.
    (C) Status of vessels pending appeal. A vessel denied a limited 
access American lobster permit for Areas 3, 4, and/or 5 may fish in 
Areas 3, 4, and/or 5, provided that the denial has been appealed, the 
appeal is pending, and the vessel has on board a letter from the 
Regional Administrator authorizing the vessel to fish in the area for 
which access is sought through the appeals process, unless otherwise 
determined by the Regional Administrator. The Regional Administrator 
will issue such a letter for the pendency of any appeal. This letter of 
authorization would be the final administrative action of the 
Department of Commerce pending a final decision on the appeal. While 
the appeal is pending, the vessel may fish up to 800 lobster traps, 
unless the vessel's Federal lobster permit has designated only Area 3 
for lobster trap fishing, whereby, the vessel may fish up to 1,800 
lobster traps in Area 3 only. If the appeal is finally denied, the 
Regional Administrator must send a notice of final denial to the vessel 
owner; the letter of authorization will become invalid 5 days after 
receipt of the notice of denial or 15 days after the date it is sent, 
whichever occurs first.
* * * * *

    3. In Sec.  697.18, paragraphs (a), (b), and (h) are revised to 
read as follows:


Sec.  697.18  Lobster management areas.

* * * * *
    (a) EEZ Nearshore Management Area 1. EEZ Nearshore Management Area 
1 is defined by the area, including state and Federal waters that are 
nearshore in the Gulf of Maine, bounded by straight lines connecting 
the following points, in the order stated, and the coastline of Maine, 
New Hampshire, and Massachusetts to the northernmost point of Cape Cod:

------------------------------------------------------------------------
                  Point                      Latitude        Longitude
------------------------------------------------------------------------
A                                          43 deg.58' N.   67 deg.22' W.
B                                          43 deg.41' N.   68 deg.00' W.
C                                          43 deg.12' N.   69 deg.00' W.
D                                          42 deg.49' N.   69 deg.40' W.
E                                           42 deg.15.5'   70 deg.40' W.
                                                      N.
F                                          42 deg.10' N.   69 deg.56' W.
G                                           42 deg.05.5'   70 deg.14' W.
                                                      N.
G1                                         42 deg.04.25'   70 deg.17.22'
                                                      N.              W.
G2                                         42 deg.02.84'    70 deg.16.1'
                                                      N.              W.
G3                                         42 deg.03.35'    70 deg.14.2'
                                                      N.              W.
------------------------------------------------------------------------
From point ``G3'' along the coastline of Massachusetts, including the
  southwestern end of the Cape Cod Canal, continuing along the
  coastlines of Massachusetts, New Hampshire, Maine, and the seaward EEZ
  boundary back to Point A.

    (b) EEZ Nearshore Management Area 2. EEZ Nearshore Management Area 
2 is defined by the area, including state and Federal waters that are 
nearshore in Southern New England, bounded by straight lines connecting 
the following points, in the order stated:

------------------------------------------------------------------------
                  Point                      Latitude        Longitude
------------------------------------------------------------------------
H                                          41 deg.40' N.   70 deg.05' W.
I                                          41 deg.15' N.   70 deg.05' W.
J                                           41 deg.21.5'    69 deg.16.5'
                                                      N.              W.
K                                          41 deg.10' N.    69 deg.06.5'
                                                                      W.
L                                          40 deg.55' N.   68 deg.54' W.
M                                           40 deg.27.5'   71 deg.14' W.
                                                      N.
N                                           40 deg.45.5'   71 deg.34' W.
                                                      N.
O                                          41 deg.07' N.   71 deg.43' W.
P                                           41 deg.06.5'   71 deg.47' W.
                                                      N.
Q                                           41 deg.11.5'   71 deg.47.25'
                                                      N.              W.
R                                           41 deg.18.5'    71 deg.54.5'
                                                      N.              W.
------------------------------------------------------------------------
From point ``R'' along the maritime boundary between Connecticut and
  Rhode Island to the coastal Connecticut/Rhode Island boundary and then
  back to point ``H'' along the Rhode Island and Massachusetts coast,
  including the northeastern end of the Cape Cod Canal.

* * * * *
    (h) EEZ Nearshore Outer Cape Lobster Management Area. EEZ Nearshore 
Outer Cape Lobster Management Area is defined by the area, including 
state and Federal waters off Cape Cod, bounded by straight lines 
connecting the following points, in the order stated:

------------------------------------------------------------------------
                  Point                      Latitude        Longitude
------------------------------------------------------------------------
F                                          42 deg.10' N.   69 deg.56' W.
G                                           42 deg.05.5'   70 deg.14' W.
                                                      N.
G1                                         42 deg.04.25'   70 deg.17.22'
                                                      N.              W.
G2                                         42 deg.02.84'    70 deg.16.1'
                                                      N.              W.
G4                                         41 deg.52' N.   70 deg.07.49'
                                                                      W.
G5                                         41 deg.54.46'   70 deg.03.99'
                                                      N.              W.

[[Page 295]]

 
     From Point ``G5'' along the outer Cape Cod coast to point ``H''
H                                          41 deg.40' N.   70 deg.05' W.
H1                                         41 deg.18' N.   70 deg.05' W.
 From Point ``H1'' along the eastern coast of Nantucket Island to Point
                                  ``I''
I                                          41 deg.15' N.   70 deg.00' W.
J                                           41 deg.21.5'   69 deg.16' W.
                                                      N.
                  From Point ``J'' Back to Point ``F.''
------------------------------------------------------------------------

* * * * *

    4. Section 697.19 is revised to read as follows:


Sec.  697.19  Trap limits and trap tag requirements for vessels fishing 
with lobster traps.

    (a) Trap limits for vessels fishing or authorized to fish in any 
Nearshore Management Area.  (1) Through April 30, 2002, vessels fishing 
in or issued a management area designation certificate or valid limited 
access American lobster permit specifying one or more EEZ Nearshore 
Management Area(s), whether or not in combination with the Area 2/3 
Overlap, shall not fish with, deploy in, possess in, or haul back from 
such area more than 800 lobster traps.
    (2) Beginning May 1, 2002, vessels fishing in or issued a valid 
limited access American lobster permit specifying one or more of EEZ 
Nearshore Management Areas 1, 2, or the Outer Cape Management Area, 
regardless of whether it is in combination with the Area 2/3 Overlap, 
shall not fish with, deploy in, possess in, or haul back from such 
area(s) more than 800 lobster traps, except as noted in paragraph (d) 
of this section.
    (3) Beginning May 1, 2002, vessels fishing in or issued a 
management area designation certificate or valid limited access 
American lobster permit specifying EEZ Management Area 4 may not fish 
more lobster traps in Area 4 than the number approved by the Regional 
Administrator pursuant to Sec.  697.4 (a)(7)(vi), which will not exceed 
1,440 lobster traps.
    (4) Beginning May 1, 2002, vessels fishing in or issued a 
management area designation certificate or valid limited access 
American lobster permit specifying EEZ Management Area 5 may not fish 
more lobster traps in Area 5 than the number approved by the Regional 
Administrator pursuant to Sec.  697.4 (a)(7)(vii), which will not 
exceed 1,440 lobster traps, unless the vessel is operating under an 
Area 5 Trap Waiver permit issued under Sec.  697.26.
    (b) Trap limits for vessels fishing or authorized to fish in the 
EEZ Offshore Management Area. (1) Through April 30, 2002, vessels 
fishing only in or issued a management area designation certificate or 
valid limited access American lobster permit specifying only EEZ 
Offshore Management Area 3, or, specifying only EEZ Offshore Management 
Area 3 and the Area 2/3 Overlap, may not fish with, deploy in, possess 
in, or haul back from such areas more than 1,800 lobster traps.
    (2) Beginning May 1, 2002, for fishing years 2002, 2003, 2004, 
2005, and beyond until changed, vessels fishing only in or issued a 
management area designation certificate or valid limited access 
American lobster permit specifying only EEZ Offshore Management Area 3, 
or, specifying only EEZ Offshore Management Area 3 and the Area 2/3 
Overlap, may not fish with, deploy in, possess in, or haul back from 
such areas more than the number of lobster traps indicated in Table 1 
for the appropriate fishing year with respect to the number of lobster 
traps approved by the Regional Administrator under Sec.  
697.4(a)(7)(vii) for each vessel. Area 3 lobster trap allocations for 
the initial fishing year, beginning May 1, 2002, will not exceed 2,656 
lobster traps.

                                     Table 1. Area 3 Trap Reduction Schedule
----------------------------------------------------------------------------------------------------------------
                                                                       Trap Allocation by Fishing Year*
                                                             ---------------------------------------------------
                                                                                                       2005 and
   Number of Traps Approved by the Regional Administrator                                               beyond
                                                                  2002         2003         2004        until
                                                                                                       changed
----------------------------------------------------------------------------------------------------------------
1200-1299                                                            1200         1200         1200         1200
1300-1399                                                            1200         1200         1200         1200
1400-1499                                                            1290         1251         1213         1200
1500-1599                                                            1388         1337         1297         1276
1600-1699                                                            1467         1423         1380         1352
1700-1799                                                            1548         1498         1452         1417
1800-1899                                                            1628         1573         1523         1482
1900-1999                                                            1705         1644         1589         1549
2000-2099                                                            1782         1715         1654         1616
2100-2199                                                            1856         1782         1715         1674
2200-2299                                                            1930         1849         1776         1732
2300-2399                                                            2003         1905         1836         1789
2400-2499                                                            2076         1981         1896         1845
2500-2599                                                            2197         2034         1952         1897
2600-2699                                                            2218         2107         2008         1949
2700-2799                                                            2288         2169         2063         2000
2800-2899                                                            2357         2230         2117         2050
2900-2999                                                            2425         2291         2171         2100
3000-3099                                                            2493         2351         2225         2150
3100-3199                                                            2575         2422         2288         2209
3200                                                                 2656         2493         2351         2267
----------------------------------------------------------------------------------------------------------------
* Trap allocations below 1,200 will not be subject to further reductions.

    (3) For example, if a limited access Federal lobster permit holder 
elects 1991 as the qualifying year, and is assigned a fishing effort 
level of 2,323 lobster traps under Sec. 697.4(a)(7)(viii), then the 
lobster trap allocation for that vessel would be 2,003 lobster traps 
during fishing year 2002 and would decrease annually by incremental 
reductions until reaching a lobster trap allocation of 1,789 lobster 
traps in fishing year 2005. Thus, each lobster trap allocation of 
greater than 1,200 lobster traps will be reduced on a sliding scale 
over 4 years. The

[[Page 296]]

respective lobster trap reductions will not go below a baseline of 
1,200 lobster traps. Each initial allocation in Area 3 of fewer than 
1,200 lobster traps will remain at that allocation.
    (c) Lobster trap limits for vessels fishing or authorized to fish 
in more than one EEZ Management Area. A vessel owner who elects to fish 
in more than one EEZ Management Area may not fish with, deploy in, 
possess in, or haul back from any of those elected management areas 
more lobster traps than the lowest number of lobster traps allocated to 
that vessel for any one elected management area.
    (d) Notwithstanding any other provision, lobster trap limits in New 
Hampshire state waters. Any vessel with a Federal lobster permit and a 
New Hampshire Full Commercial Lobster license may fish up to a maximum 
of 1,200 lobster traps in New Hampshire state waters, as may be 
authorized by New Hampshire lobster fishery regulations. However, such 
vessel may not fish, possess, deploy, or haul back more than 800 
lobster traps at any one time in the Federal waters of EEZ Nearshore 
Management Area 1, and may not fish more than a combined total of 1,200 
lobster traps in the Federal and New Hampshire state waters portions of 
EEZ Nearshore Management Area 1. When fishing in the Federal waters of 
EEZ Nearshore Management Area 1, any vessel with a Federal lobster 
permit may not possess, deploy, or haul back lobster traps in excess of 
the maximum number of lobster traps specified at paragraph (a)(2) of 
this section.
    (e) Trap tag requirements for vessels fishing with lobster traps. 
Any lobster trap fished in Federal waters must have a valid Federal 
lobster trap tag permanently attached to the trap bridge or central 
cross-member. Any vessel with a Federal lobster permit may not possess, 
deploy, or haul back lobster traps in any portion of any management 
area that do not have a valid, federally recognized lobster trap tag 
permanently attached to the trap bridge or central cross-member.
    (f) Maximum Lobster Trap Tags Authorized for Direct Purchase. In 
any fishing year, the maximum number of tags authorized for direct 
purchase by each permit holder is the applicable trap limit specified 
in paragraphs (a) and (b) of this section plus an additional 10 percent 
to cover trap loss.
    (g) EEZ Management Area 5 Trap Waiver Exemption. Any vessel issued 
an Area 5 Trap Waiver permit under Sec.  697.4(p) is exempt from the 
provisions of this section.

    5. In Sec.  697.25, paragraphs (b) and (c) are redesignated as 
paragraphs (c) and (d), and new paragraph (b) is added to read as 
follows:


Sec.  697.25  Adjustment to management measures.

* * * * *
    (b) Conservation equivalency measures. A conservation equivalency 
measure is defined as a measure adopted by a state that differs from 
the specific requirements of the interstate fishery management plan, 
but achieves the same quantified level of conservation for the resource 
under management. Under this section, the Regional Administrator may 
consider any future recommendations for modifications to Federal 
regulations based on conservation equivalency that are formally 
submitted to him/her in writing by the ASMFC and that contain the 
following supporting information:
    (1) A description of how Federal regulations should be modified;
    (2) An explanation of how the recommended measure(s) would achieve 
a level of conservation benefits for the resource equivalent to the 
applicable Federal regulations;
    (3) An explanation of how Federal implementation of the 
conservation equivalent measure(s) would achieve ISFMP objectives, be 
consistent with the Magnuson-Stevens Act national standards, and be 
compatible with the effective implementation of the ISFMP; and
    (4) A detailed analysis of the biological, economic, and social 
impacts of the recommended conservation equivalent measure(s). After 
considering the recommendation and the necessary supporting 
information, NMFS may issue a proposed rule to implement the 
conservation equivalent measures. After considering public comment, 
NMFS may issue a final rule to implement such measures.
* * * * *
[FR Doc. 02-142 Filed 1-2-02; 8:45 am]
BILLING CODE 3510-22-S